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The n e w e ng l a n d j o u r na l of m e dic i n e

Spe ci a l R e p or t

Rapid Scaling Up of Covid-19 Diagnostic Testing


in the United States — The NIH RADx Initiative
Bruce J. Tromberg, Ph.D., Tara A. Schwetz, Ph.D., Eliseo J. Pérez‑Stable, M.D.,
Richard J. Hodes, M.D., Richard P. Woychik, Ph.D., Rick A. Bright, Ph.D.,
Rachael L. Fleurence, Ph.D., and Francis S. Collins, M.D., Ph.D.

The first reports of an unusual cluster of pneu- of RADx and their goals, and we end with a re-
monia cases in the city of Wuhan, China, view of the challenges ahead.
emerged in December 2019, heralding a global On April 24, 2020, Congress appropriated
pandemic. As of July 13, 2020, more than 3.3 $1.5 billion, from the $25 billion provided in the
million U.S. residents have received a diagnosis Paycheck Protection Program and Health Care
of coronavirus disease 2019 (Covid-19), and more Enhancement Act for SARS-CoV-2 testing, to the
than 135,000 have died.1 Of great concern are NIH. Within 5 days after the legislation was
the data showing the disproportionate effect of signed into law, the NIH launched RADx to sup-
Covid-19 on ethnic and racial minorities.2,3 Since port the development, production scale-up, and
January 2020, the National Institutes of Health deployment of accurate, rapid tests across the
(NIH) has been involved in multiple wide-rang- country. From a timing perspective, the RADx
ing collaborative efforts spanning the develop- initiative was conceived by Congress to provide
ment of vaccines and diagnostic strategies, the near-term solutions to increase the number of
identification and evaluation of safe and effec- tests available by the fall of 2020, as schools and
tive treatments, the understanding of the natural universities evaluate the safety of in-person
history of the disease, and the study of racial classes and as the annual influenza season be-
and ethnic disparities.4 In this article, we de- gins. In the slightly longer term, RADx also
scribe the additional role of the NIH in the effort aims to support the development and production
to increase the range and availability of diagnos- of innovative diagnostic technologies as well as
tic tests for the causative virus, SARS-CoV-2 strategies for making testing available to di-
(severe acute respiratory syndrome coronavirus 2). verse, vulnerable, and underserved populations
We begin with a review of current and pro- through 2021. One of the goals of the RADx
jected testing capacity needs and review differ- initiative is to expand capacity so that by Decem-
ent types of diagnostic tests. We then describe ber 2020, approximately 2% of the U.S. popula-
the Rapid Acceleration of Diagnostics (RADx) tion (6 million persons) can be tested per day,
program, its goals, and its focus on underserved with more tests ready for rapid deployment in
populations. As will become clear, this program proportion to national demand.
represents a dramatic extension of the usual
NIH mode of supporting research. RADx was Current Te s ting C apacit y
established in just a few days; it covers the entire and Pr ojec tions
life cycle of the target technologies; it is tightly
focused on timelines and outcomes; it receives In the week leading up to July 13, 2020, daily
applications primarily from small companies; it diagnostic testing capacity in the United States
is partnering with other agencies such as the was fluctuating between 520,000 and 823,000
Office of the Assistant Secretary for Health, the tests.5 Models that provide robust estimates of
Biomedical Advanced Research and Develop- the number of tests needed per day vary widely.
ment Authority (BARDA), and the Department of Some experts estimated that 900,000 tests per
Defense; and it is expressly focused on health day would be needed in May.6 Others forecasted
disparities. We describe here the four components the need for 5 million tests per day by June, in-

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creasing to 20 million tests per day by July.7 Al- quences. Although a number of manufacturers
though national totals are helpful benchmarks, are known to be developing antigen-based tests,
the models must account for a range of vari- to date only two have received an FDA EUA.12,13
ables, including different levels of regional prev- Serologic tests that detect antibody response
alence and community spread, the needs of high- are also being developed by numerous compa-
risk communities (e.g., nursing homes, shelters, nies, but these tests are not suitable for the di-
prisons, and factories), and the frequencies and agnosis of acute infection, since human antibod-
types of testing to be conducted. For example, ies are not formed until 2 to 3 weeks after viral
the type and characteristics of a test that are infection. Thus, their primary use is to docu-
required will differ when testing is conducted to ment previous exposure to the virus.14 The devel-
determine personal infection status as compared opment and scaling of serologic tests are not
with evaluating population-level surveillance. Test under the auspices of the NIH RADx program.
performance (the limit of detection, sensitivity,
specificity, and the positive predictive value), Comp onent s of the R AD x Pr o gr am
turnaround time, cost, accessibility, and accep-
tance are critical factors in a successful testing The RADx program has four components. RADx-
strategy that can meet the needs of individual tech aims to identify, accelerate the development
persons and communities across the country. of, scale up, and deploy innovative point-of-care
technologies as early as the fall of 2020. RADx–
Advanced Technology Platforms (RADx-ATP) will
T ype s of Diagnos tic Te s t s
support the scale-up of somewhat more ad-
Current diagnosis of acute SARS-CoV-2 infection vanced technologies that can achieve immediate,
relies on tests that detect either viral RNA or viral substantial increases in capacity. RADx-rad (short-
antigens.8 Most existing methods for Covid-19 hand for radical) will focus on truly nontradi-
testing use reverse-transcriptase–polymerase- tional approaches for testing that have a slightly
chain-reaction (RT-PCR) tests that detect nucleic longer horizon. RADx–Underserved Populations
acid sequences specific to SARS-CoV-2. These (RADx-UP) will establish community-engaged
tests are highly sensitive and specific when con- implementation projects to improve access to test-
ducted in centralized laboratories with standard- ing in underserved and vulnerable populations.
ized protocols, but they require a large amount
of laboratory space, complex equipment, regula- Le ver aging Our Scientific
tory approvals for the laboratory operations, and Cre ativit y — R AD x -tech
skilled laboratory leadership and technicians.
Results generally take time to become available, The RADx-tech program offers extensive exper-
with windows ranging from hours to days, and tise and support to bring the diagnostic tech-
the need for transport of specimens to a central nologies that require additional clinical, regula-
laboratory leads to further delays. For this rea- tory, and commercialization assistance from
son, low-complexity molecular diagnostic point- development to deployment. The RADx-tech pro-
of-care tests with rapid turnaround have sub- gram uses a rigorous, rapid-review process that
stantial practical advantages.9 A number of provides independent evaluation of the technol-
point-of-care tests have now received Emergency ogy and the potential to scale. The program le-
Use Authorization (EUA) by the Food and Drug verages the long-standing Point-of-Care Technol-
Administration (FDA).10 ogy Research Network (POCTRN), which is run
Antigen tests work by detecting the presence by the National Institute of Biomedical Imaging
of viral proteins and can provide rapid results, and Bioengineering.15 In a process based on an
similar to the way pregnancy tests operate.9 Anti- “innovation funnel,” applications move rapidly
gen tests can offer fast and scalable point-of-care through multiple review gates that involve in-
performance, but they have lower sensitivity than creasing selection pressure (Fig. 1).
most nucleic acid–based assays.11 This limita- On entering the innovation funnel, each proj-
tion can be a concern in high-risk settings such ect is evaluated by a team with wide-ranging ex-
as nursing homes, where missing the detection pertise. Projects that are deemed to be promising
of an infected person can lead to serious conse- enter into to a weeklong intensive review pro-

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Special Report

National Call
for Innovative End of Summer
Technologies Phase 0 Phase 1 Phase 2 or Fall 2020
Rolling submissions “Shark tank”–like Validation and Clinical tests,
and selections begin rapid-selection risk review regulatory approval,
April 29, 2020 process and scaling up

Fast Track for Advanced Technologies: the RADx-ATP Program

Deploy Millions
of Tests per Week

Figure 1. RADx-tech Innovation Funnel to Evaluate Testing Technologies for Covid-19.


Applications to the Rapid Acceleration of Diagnostics (RADx)–tech program for the detection of severe acute respi‑
ratory syndrome coronavirus 2 (SARS‑CoV‑2), which causes coronavirus disease 2019 (Covid‑19), move rapidly through
an “innovation funnel” from phase 0 to phase 1 to phase 2, with increasing selection pressure at each gate. The
RADx–Advanced Technologies Platforms (RADx‑ATP) program identifies projects that are more advanced and that
can be moved immediately to phase 1 or even phase 2.

cess, which we refer to as a “shark tank” or


“deep dive.”16 In phase 0, multiple expert review-
ers provide a detailed assessment of the technol- Small Business
(<50 employees)
ogy and give critical feedback to the NIH and
the project teams. Approximately 15 to 20% of Academic Laboratory
completed RADx-tech applications enter phase 0.
For those projects that are successful (25 to 30% Start-up (<1 yr)
of phase 0 projects), detailed, milestone-driven
work packages are developed in order for proj- Midsize Business
ects to enter phase 1. Technologies are then (50–250 employees)
rigorously tested and validated in the indepen- Large Business
dent POCTRN validation core over a monthlong (>250 employees)
process to ensure that these new tests meet or
Other
exceed their predicted analytic performance. If a
project is judged to be successful at that point, Nonprofit Laboratory
rapid scale-up and clinical testing in phase 2 gets or Contract Research
Organization
under way, with substantial financial assistance
provided. 0 50 100 150 200 250
Applications that have been received to date No. of Proposals
by the RADx-tech program span nearly every
stage of technology development, with submis- Figure 2. Number of RADx-tech Proposals, According to Organization Type.
sions coming from small and midsize compa- The majority of applications to the RADx‑tech and the RADx‑ATP programs
nies, academic laboratories, early-stage start-up have come from small businesses, academic laboratories, and early‑stage
companies, and large commercial manufacturers start‑up companies.
(Fig. 2). It is not uncommon for applicants to

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phase 1, and the entry of the first project into


Not specified,
Feces, 1.4% phase 2 is imminent. As technologies and com-
2.8% panies go through this process, the RADx pro-
gram is also seeking to identify testing plat-
forms that may be especially suitable for testing
Blood, small groups or isolated, underserved popula-
8.8%
Saliva, tions at point-of-care sites or in rural or remote
24.5% areas that do not have access to high-throughput
robotic testing systems. Technologies that reduce
Other,
10.1% the facility footprint, decrease overall testing
complexity, and provide rapid results will be es-
pecially helpful, and the program will work to
assist in the deployment of these systems in these
specialized environments. As part of this pro-
Sputum, cess, ease of use, including specimen-collection
11.9%
methods and clear and easy-to-understand in-
Nasal swab,
structions to facilitate widespread uptake, will
22.6% be integrated into the process.
Active collaborations with other government
Oral swab, agencies are critical during this process. The
17.9%
NIH is closely coordinating with the Office of
the Assistant Secretary for Health, BARDA, and
Department of Defense to ensure that each party
is aware of the discussions and existing relation-
Figure 3. Sample Types in RADx-tech and RADx-ATP Proposals.
ships taking place with private-sector compa-
Applications to RADx-tech and RADx-ATP include multiple alternative sam‑
pling strategies for viral testing, not just traditional nasal swabs. nies, to ensure no duplication of funding, to
streamline communications, and to leverage the
experience, knowledge, and technical capacities
still be preparing for their EUA submission to of different agencies within the government.
the FDA. Promising technologies that have been
reviewed by the program include innovations Achie ving Shor t-Term, R apid
that allow high-throughput, portable, and point- Sc ale - up — R AD x - ATP
of-care platforms, from CRISPR (clustered regu-
larly interspaced short palindromic repeats) tech- Not all emerging technologies need the shark
nologies for the detection of viral nucleic acids tank approach. As shown in Figure 1, a bypass
to lateral flow strips for both nucleic acid and pathway is also provided to catalyze the rapid
viral antigen testing.17 Many platforms integrate development of technologies that are already
advanced microfluidic components and state-of at a more advanced stage of development. The
the-art readout strategies that use compact op- RADx–Advanced Technologies Platforms (RADx-
tics and electronics. Overall performance, ease of ATP) program provides a rapid-response applica-
use, and digital reporting are facilitated by smart- tion process for companies with an existing
phone systems that are designed for nonexperts. point-of-care technology that has already been
In addition, alternatives to conventional naso- authorized by the FDA for the detection of SARS-
pharyngeal and anterior nasal swab sampling CoV-2 and that has the ability to scale produc-
are being explored,18 and a majority of proto- tion to between 20,000 and 100,000 tests per day
types involve the use of saliva, oral swabs, and by the fall of 2020. In addition, the company
other collection sites (Fig. 3). must have infrastructure and a deployment or
As of July 13, 2020, a total of 2587 expres- placement strategy that enables tests to be made
sions of interest have been received, and more rapidly available in point-of-care settings. Com-
than 600 full applications have been submitted panies are asked to develop a robust plan to
from 41 U.S. states and the District of Columbia. collect data continuously to support a submis-
Within 8 weeks after the launch, 27 projects had sion to the FDA for a Premarket Approval (PMA)
successfully made it through the shark tank to or a Premarket Notification (510[k]).

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Special Report

The RADx-ATP program is also seeking to bustness, or accuracy of a wide range of nontra-
expand high-throughput laboratories (also called ditional technologies or new settings (e.g., home-
“mega-labs”) that are in a position to increase based testing technologies) for the detection of
testing capacity to 100,000 to 250,000 tests per SARS-CoV-2 infections. Projects under the RADx-
day. These laboratories have been certified ac- rad component will be focused not just on the
cording to the Clinical Laboratory Improvement development of new technologies or approaches
Amendments regulations and are already in op- but also on the novel repurposing of existing
eration with the necessary equipment and trained technologies. Furthermore, RADx-rad will sup-
staff to guarantee a test-turnaround time of 24 port those innovative technologies that are on a
hours (from the time that the sample is obtained more extended timescale and that will take lon-
to the availability of the result). Such high- ger to develop than a 6-month time frame. Such
throughput laboratories generally have the equip- technologies include, for example, the use of
ment to analyze large numbers of tests with biologic or physiological biomarkers to detect an
well-developed automated workflows to process infection or predict the severity of disease,23
samples and obtain results rapidly. Newer tech- including the likelihood of the multisystem in-
nologies, such as next-generation sequencing, flammatory syndrome in children,24 or the use
can read out hundreds to thousands of genes or of chemosensory changes as an early indicator of
gene regions simultaneously19 and should be able viral positivity.25 Other examples include the use
to support large-scale, population-level testing of biosensors to detect the presence of the virus
for surveillance purposes, possibly on the order in the breath26 or the analysis of wastewater to
of millions per day. conduct community-based surveillance.27
Pooling strategies are also being considered
for population-level surveillance, because they Fo cus on Under ser ved
can greatly increase throughput when testing P opul ations — R AD x - UP
resources are limited.20 If a pooled test result is
negative, then the patients who provided the It is clear that racial and ethnic minorities are
samples are considered to be negative for active bearing a higher burden of disease and mortal-
SARS-CoV-2 infection. If a pooled test result is ity from Covid-19.3 In particular, non-Hispanic
positive, then each sample from the pool of pa- Blacks, Hispanics, and American Indians and
tients needs to be tested individually. The effi- Alaska Natives are hospitalized and die at dis-
ciency of pooling has been shown to depend on proportionately higher rates than other groups.28-31
the prevalence of SARS-CoV-2, test sensitivity, This disproportionate burden in health outcomes
and patient-pool size and will need further for underserved populations and racial and eth-
evaluation before widespread implementation.21 nic minorities shines a bright light on long-
Molecular bar-coding is another promising ap- standing health disparities in the United States
proach. In the first step, the individual sample is and is of profound concern.32
labeled with a DNA tag, in order for it to be The goal of this part of the RADx program
identifiable at the molecular level. Massive pool- (RADx-UP) is to understand factors that have led
ing can then be done to increase the number of to the disproportionate burden of the pandemic
tests that can be processed at once. Positive on underserved populations and to support im-
samples can be identified by their unique tag, proved access and uptake of SARS-CoV-2 testing.
but the pooling step can greatly decrease the use The program aims to examine infection patterns
of reagents, equipment, and labor.22 This approach and efforts in order to increase access to and
may even allow for a range of other viral patho- effectiveness of testing methods by building an
gens to be detected during the same analysis. infrastructure that can be leveraged for the on-
going Covid-19 public health efforts, especially
as the impending influenza season begins in the
Lo oking Fur ther Ahe ad
— R AD x - r ad fall. Through engagement with communities and
in close alignment with their leaders, a series of
Not all technologies will be ready for near-term interlinked, pragmatic implementation science
production scale-up and deployment. A special projects at multiple sites across the country are
component of the program (RADx-rad) has been being planned to investigate, in real time, the
established to evaluate the usability, access, ro- effective approaches to testing within these

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populations. In addition, in order to be respon- sufficient supplies of swabs, raw materials, re-
sive to the communities that this initiative will agents, and equipment to establishing new pro-
partner with and to understand more clearly the duction lines and manufacturing facilities with-
multitude of factors influencing the ability and in aggressive timelines. These are likely to be
willingness of a group to be tested for SARS- logistic feats that will require rapid access to
CoV-2, the program is obtaining strong guid- capital, equipment, and skilled staff.
ance on social, ethical, and behavioral issues by Third, on the distribution side, once in-
means of the establishment of a research pro- creased testing capacity is available, managing
gram focused solely on these issues. the distribution and implementation of tests into
the appropriate venues and geographic localities
will be critical. We anticipate coordinating
Challenge s Ahe ad
closely with Operation Warp Speed34 and lever-
The NIH has been engaged almost continuously aging the logistic expertise of the Department of
in battling epidemic diseases over the past sev- Defense. Uptake of testing may also be an issue.
eral decades. From human immunodeficiency vi- All these challenges are being addressed with
rus (HIV) infection to influenza, SARS, Middle unprecedented levels of coordination and col-
East respiratory syndrome (MERS), Ebola, and laboration across academia, government, in-
Zika, each pandemic brings its own idiosyn- dustry, and nonprofit foundations.35 We antici-
cratic issues that require unique solutions. We pate that these interactions will substantially
anticipate that challenges to the RADx program affect traditional barriers and facilitate the first
are likely to arise on several fronts. First, on the burst of increased testing capacity by the fall
technical side, many promising prototypes un- of 2020.
der consideration are in the early proof-of-con-
cept stage. It is likely that many will fail along Conclusions
the way. Much effort will be needed to conduct
clinical validation rapidly and to obtain regula- Expanding the capacity, throughput, speed of
tory authorizations and approvals. Access to returning results, analytic performance, and re-
clinical samples for clinical validation has al- gional placement of diagnostic technologies is
ready emerged as an issue that is impeding urgently needed and, if successful, will contrib-
progress for companies. ute importantly to the current national efforts to
Another challenge will be to identify digital curb the Covid-19 pandemic and help to reduce
health platforms that provide connectivity among inequities for underserved populations. As we
test results, electronic health records, and public embark on this initiative, the challenges ahead
health organizations. Many smaller diagnostic are considerable, and the timetable is truly
companies do not have expertise in this area, daunting. Aiming to achieve this rapid evalua-
and it will be important to ensure their access to tion, validation, and scale-up has rarely, if ever,
this expertise in the planning stages. Data should been attempted at this pace. However, the NIH
be able to be transmitted to the patient and is in a position to serve as a “venture invest-
health care provider and to state and local public ment” organization and is currently striving to
health authorities with the use of national inter­ operate in that entrepreneurial spirit. The suc-
operability standards and common data elements cess of the RADx program will depend on truly
to collect key demographic, test result, and innovative ideas coming forward from the minds
clinical outcome information.33 This will lay the and laboratories of technology developers, a ro-
foundation for the future point-of-care clinical bust and rapidly responsive expert evaluation
practice and research enterprise in the years to system, extensive collaborations in validation
come, in which deidentified, privacy-protected, and scale-up with experts from all sectors, and
patient-level test data can be linked to clinical strong community partnerships to support test-
outcomes to form curated, analyzable data sets. ing availability and uptake. All these partners
Second, on the manufacturing side, scaling up are profoundly energized by a sense of urgency,
of production is a complex enterprise that in- opportunity, and responsibility to provide test-
volves a wide range of factors, from ensuring ing at scale in the face of this global pandemic.

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Special Report

Disclosure forms provided by the authors are available with 17. Broughton JP, Deng X, Yu G, et al. CRISPR-Cas12-based de-
the full text of this article at NEJM.org. tection of SARS-CoV-2. Nat Biotechnol 2020;​38:​870-4.
18. Tu Y-P, Jennings R, Hart B, et al. Swabs collected by patients
From the National Institute of Biomedical Imaging and Bioen‑ or health care workers for SARS-CoV-2 testing. N Engl J Med.
gineering (B.J.T.), the National Institute of Nursing Research DOI:​ 10.1056/NEJMc2016321.
(T.A.S.), the Office of the Director (T.A.S., R.A.B., R.L.F., 19. Gwinn M, MacCannell D, Armstrong GL. Next-generation
F.S.C.), the National Institute on Minority Health and Health sequencing of infectious pathogens. JAMA 2019;​321:​893-4.
Disparities (E.J.P.-S.), the National Institute on Aging (R.J.H.), 20. Hogan CA, Sahoo MK, Pinsky BA. Sample pooling as a strat-
and the National Institute of Environmental Health Sciences, egy to detect community transmission of SARS-CoV-2. JAMA
National Toxicology Program (R.P.W.), National Institutes of 2020;​323:​1967-9.
Health, Bethesda, MD. Address reprint requests to Dr. Collins 21. Cherif A, Grobe N, Wang X, Kotanko P. Simulation of pool
at the Office of the Director, National Institutes of Health, testing to identify patients with coronavirus disease 2019 under
1 Center Dr., Bldg. 1, Rm. 126, Bethesda, MD 20892, or at conditions of limited test availability. JAMA Netw Open 2020;​
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